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JANUARY 2013
THREE QUESTIONS
1. What is the first date on which Treasury will not have sufficient cash to pay all of its bills in full and on time (the X Date)?
If we reach the X Date, and Treasury is forced to "prioritize its payments to avoid a debt default: 2. What would be the effects on government operations? 3. What would be the market risks?
BPC METHODOLOGY
Closely analyzed cash flows during February and March to generate daily projections
Those that were superseded by events are not of sufficient magnitude to significantly affect the estimates
Extended unemployment insurance benefits will be allowed to expire (Benefits were extended, but very small impact on debt limit timing)
Extraordinary Measures
EXTRAORDINARY MEASURES
The Treasury Secretary then began tapping into ~$200 b of emergency borrowing authority referred to as extraordinary measures to allow for an additional period of fully-funded government operations.
Extraordinary Measures are legal financial maneuvers that allow the Treasury Department to raise additional cash to meet government obligations.
EXTRAORDINARY MEASURES
EXTRAORDINARY MEASURES
10
BPC ESTIMATE
$159 billion $23 billion $20 billion Not Available During This Period
Total
Sources: Government Accountability Office; Congressional Research Service; December 26, 2012 letter from Treasury Secretary Geithner to Congress; Treasury Direct Government Account Statements
$201 billion
Note: The totals indicate available measures. Treasury may not employ all available measures. Treasury also has measures available (not listed) that assist with cash flow and debt management, but do not extend the date on which Treasury would begin to default on federal obligations absent an increase in the debt limit (the X Date). Column does not add due to rounding.
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In 2011, Extraordinary Measures extended the federal governments ability to pay its obligations from May 15 until August 2. They wont buy as much time as they did last summer
February is a bad month for the federal governments finances Fewer measures available
EXTRAORDINARY MEASURES
12
Once Treasury has utilized all of its emergency borrowing authority, only two sources will remain from which to continue funding government operations:
Remaining cash on hand (including any leftover funds from the emergency $201 b)
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EXTRAORDINARY MEASURES
EM Exhausted
The X Date
15
X Date: The first day on which Treasury has exhausted its borrowing authority and no longer has sufficient funds to pay all of its bills in full and on time
In other words, if the debt limit has not been raised by the X Date, the federal government will begin defaulting on some of its obligations. After the X Date, bills must be paid solely out of incoming cash flows, which will not be able to cover all government spending.
BPC estimates that the X Date will occur between February 15 and March 1.
BPC will update its projection as additional information becomes available.
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$250
$200 $150 $100
Actual
$50 $-
Projected
Note: The projections above are subject to substantial uncertainty and volatility resulting from economic performance, cash flow fluctuations, and other factors.
Source: Bipartisan Policy Center Projections based off of Treasurys Daily, Monthly, and Direct Government Account Statements
17
Strengthening/weakening economy
Revenues have been coming in stronger than CBO projections. The BPC model accounts for this, but its impossible to know if such trends will strengthen or weaken.
18
Through February 28
Through March 15
Source: Daily Treasury Statements
$108 billion
$146 billion
$116 billion
$157 billion
Prioritization
20
President Obama has stated that the 14th Amendment does not provide a reasonable basis for challenging the constitutionality of the debt ceiling:
My lawyersare not persuaded that [the 14th Amendment] is a winning argument. Press Secretary Jay Carney: The 14th Amendment [does not give] the president the power to ignore the debt ceiling period.
Treasury has stated that it has no secret bag of tricks to finance government operations past the X Date
Treasury will not attempt to firesale assets during a crisis Other ideas are deemed impractical, illegal, and/or inappropriate (platinum coins, IOUs)
21
There is no precedent; all other debt limit impasses have been resolved without reaching the X Date.
Treasury has never failed during a debt limit impasse to meet a payment obligation.
Chairman Bernanke:
"[Going past the X Date] would no doubt have a very adverse effect very quickly on the recovery. I'm quite certain of that.
22
If we reach the X Date, Treasury might either prioritize payments or make full days worth of payments once they receive sufficient revenues to cover all of a days obligations.
Interest on the federal debt would likely be prioritized in either scenario.
PRIORITIZATION
23
Under Scenario # 1:
Treasury would find itself attempting to sort and choose from well over 100 million monthly payments.
Roughly 40% of the funds owed for the month would go unpaid.
Inflows and outflows do not match up well and are quite lumpy, as BPCs daily analysis shows.
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February 15 March 15
Year Inflows Outflows Deficit Business Days
2011
238,150
439,241
201,091
20
2012
273,296
452,595
179,299
21
2013*
277,107
451,883
174,776
20
25
26
Cost
$28.8 b
$4.2 b $19.9 b $16.8 b $10.1 b $5.0 b $8.0 b
$3.4 b
$79.0 b
27
Cost
$38.1 b $72.5 b $61.1 b $13.2 b
Veterans Benefits
Defense Vendor Payments Federal Salaries and Benefits Unemployment Insurance Benefits
$4.2 b
$28.8 b $19.9 b $6.2 b
$5.0 b
$10.1 b $16.8 b
28
Cost
$85.5 b $8.0 b $3.4 b
$79.0 b
29
The Treasury Departments Office of Inspector General (OIG) released a report in 2012 on post-X Date strategies that Treasury was considering in the summer of 2011
Some senior Treasury officials were skeptical of the prioritization scenario for two reasons:
1) Choosing to pay certain obligations before others would be of questionable legality 2) Given the sheer number of daily payments and Treasurys computerized payment system, prioritization would require a massive overhaul and reprogramming of these operations that may be impossible
One other mechanical possibility for the prioritization scenario is that Treasury (via the Office of Management and Budget) would instruct agencies to withhold processing of certain groups or types of bills so as to prevent them from entering Treasurys system
BPC does not know the feasibility of this approach
30
Scenario # 2: Make all of each days payments together once enough cash is available
Treasury might wait until enough revenue is deposited to cover an entire days payments, and then make all of those payments at once.
(For example, upon reaching the X date, it might take two days of revenue collections to raise enough cash to make all of the payments due on day one. Thus, the first days payments would be made one day late. This, of course, would delay the second days payments to a later day.)
In the 2012 OIG report, some senior Treasury officials stated that they believed this to be the most plausible and least harmful course of action. Since debt operations are handled by a separate computer system, these payments could likely still be prioritized under this scenario.
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Due Date
February 15 February 15 February 20 February 22 February 25 March 1 March 1 March 1 March 1
Delayed Until
February 20 February 20 February 25 March 1 March 5 March 15 March 15 March 15 March 15
Note: These projections incorporate a set of assumptions, including (for illustrative purposes) that the X Date occurs at the beginning of the BPC estimated window (February 15); that Treasury enters the X Date with precisely enough cash on hand to make that days $30 billion interest payment on the debt; that all interest payments are prioritized and paid on time; and that federal trust fund operations continue as normal.
Source: Bipartisan Policy Center projections off of Daily Treasury Statements
32
Examples of First- and Second-Order Consequences from Delaying Government Payments by Weeks:
A senior who depends on Social Security benefits might be unable to pay rent when due A physician who treats many Medicare and Medicaid patients may be unable to meet payroll A small government contractor may be unable to pay a subcontractor on time, thus incurring penalties A family depending on their tax refund to make a credit card payment might incur substantial interest expenses A member of the military whose paycheck is delayed might miss a mortgage payment, incurring penalties
34
The following slides project daily revenue and expenditures, by category, for the BPC projected X-date window (February 15 March 1). Projections are estimates and subject to change. Revenue flows and tax refunds are particularly volatile. For purely illustrative purposes, the Running Cash Deficit total is calculated by assuming that the X date is February 15.
Significant disruption to the tax filing and refund processes or substantial strengthening or weakening of the national economy would need to occur for the X Date to fall outside of the BPC projected range.
35
Scale ($)
90 b
$9 Billion in revenues
0b
Interest on the Debt IRS Refunds to Individuals Federal Salaries/Benefits Military Active Pay Medicare/Medicaid Defense Vendors Food/HUD/Welfare/Unemp. Other Spending
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
36
Daily Outflow
45 b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
37
Daily Inflow
Daily Outflow
45 b
IRS Refunds to Individuals Medicaid/Medicare Defense Vendors Dep. of Education Other Spending
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
38
Daily Inflow
Daily Outflow
45 b
$9 Billion in revenues
0b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
39
Daily Inflow
Daily Outflow
45 b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
40
Daily Inflow
Daily Outflow
45 b
IRS Refunds to Individuals Medicaid/Medicare Defense Vendors Dep. of Education Other Spending
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
41
Daily Inflow
Daily Outflow
45 b
0b
$5 Billion in revenues
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
42
Daily Inflow
Daily Outflow
45 b
$9 Billion in revenues
0b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
43
Daily Inflow
Daily Outflow
45 b
$9 Billion in revenues
0b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
44
Daily Inflow
Daily Outflow
$84 Billion in committed spending:
25.6 b 20.5 b 5.0 b 4.2 b 4.1 b 3.8 b 3.8 b 3.4 b 3.1 b 1.8 b 1.6 b 1.4 b 6.1 b Social Security Payments Medicare/Medicaid Civil Service Retirement Veterans Benefits Federal Emp. Salaries/Benefits Military Active Pay Military Retirement Supplemental Sec. Income Food/HUD/Welfare/Unemp. IRS Refunds to Individuals Defense Vendors Interest Payment on Debt Other Spending
45 b
0 0b
Note: All daily figures assume zero cash balance on Feb 15; numbers may be off slightly due to rounding
Source: Bipartisan Policy Center projections based off of Daily and Monthly Treasury Statements
CONSEQUENCES
45
Handling all payments for important and popular programs (e.g., Social Security, Medicare, Medicaid, Defense, military active duty pay) will quickly become impossible. Economic disruption:
Immediate 39% cut in federal spending would affect broader economy Many service providers unpaid
Medicare and Medicaid providers Defense vendors
Market Risk
47
The Government Accountability Office (GAO) issued a report detailing additional costs to taxpayers as a result of the delayed 2011 debt limit increase.
A substantial cost to taxpayers stemmed from elevated interest rates on U.S. securities issued in 2011 prior to when the debt limit was increased in August. GAO conducted an economic analysis to estimate the resulting change in interest rates.
For Fiscal Year 2011, GAO estimated additional interest costs to taxpayers of $1.3 billion.
48
The cost of the event to the federal government, however, continues to accrue because many of the bonds issued during that period remain outstanding.
BPC extended GAOs methodology to analyze the long-term cost to taxpayers stemming from the elevated interest rates. Estimate of the ten-year cost to taxpayers of the 2011 debt limit standoff = $18.9 billion To put this in perspective, the Congressional Budget Office (CBO) estimates that the Doc Fix to prevent the scheduled 27% cut to Medicare physician payments for 2012 cost $18 billion over ten years.
49
Treasury must roll over roughly $500 b in debt that matures this year during the Feb 15 Mar 15 period.
When a Treasury security matures, Treasury must pay back the principal plus interest due. Under normal circumstances, Treasury would simply roll over the security. As one security matures, the principal and interest for that security would be paid for with cash from the issuance of a new security.
50
The 2012 Office of Inspector Generals report found that there was substantial concern about this issue among Treasury officials during the 2011 debt limit event
51
Debt Maturing $20 billion $60 billion $115 billion $86 billion $60 billion $40 billion
Note: Does not include estimates of 4-week maturities that have yet to be auctioned.
52
Additional borrowing costs for the federal government from delay in increasing the debt limit
S&P downgraded last summer and reaction was not severe But there is uncertainty about effects of another downgrade since many funds are prohibited from holding non-AAA securities
53
54
$2,500
Roughly how much would the debt limit need to be increased to get through 2013 or 2014*?
Billions of Dollars
$2,000
$1,500
$1,000
$2.1 Trillion
$500
$1.1 Trillion
$0
End of 2013
End of 2014
*The estimates in the chart above assume that the full sequester is waived, war spending declines as scheduled, Medicare physician payments are frozen at 2013 levels (the Doc Fix), and the tax extenders in the American Taxpayer Relief Act of 2012 are extended permanently. Alternatively, if current law continued except that war spending declines as scheduled and a permanent Doc Fix is enacted, the necessary increases to get through 2013 and 2014, respectively, would be $1 trillion and $1.9 trillion. Source: Congressional Budget Office, Bipartisan Policy Center projections
Authors
STEVE BELL SHAI AKABAS LOREN ADLER BRIAN COLLINS SENIOR DIRECTOR OF THE ECONOMIC POLICY PROJECT SENIOR POLICY ANALYST SENIOR POLICY ANALYST POLICY ANALYST